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r,6TH Congress -1 SENATE P 
1st Session ] I 


Document 
No. 139 




RESERVATIONS 


S-7 


• 






■/«' -. 




PROPOSED RESERVATIONS 






TO THE TREATY OF PEACE 






WITH GERMANY 




1^- 


October 21, 1919.— Ordered to be printed 




- 


WASHINGTON 
GOVERNMENT PRINTING OFFICE 

1919 





NOV 



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[Senate Resolution 76.] 



Mr. Knox submitted the following resolution ; which was referred 
to the Committee on Foreign Relations: 

Whereas the Congress of the United States in declaring, pursuant 
to its exclusive authority under the Constitution, the exist- 
ence of a state of war between the United States and the 
Imperial German Government, solemnly affirmed that the 
Imperial Government has so "committed repeated acts of 
war against the Government and the people of the United 
States" that a state of war had been thrust upon them by 
that Government, and thereupon formally pledged the whole 
military and national resources of the country "to bring the 
conflict to a successful termination ' ' ; and 

Whereas the Senate of the United States, being a coequal part of 
the treaty-making power of this Government, and therefore 
coequally responsible for any treaty which is concluded and 
ratified, is deeply concerned over the draft treaty of peace 
negotiated at Versailles by which it is proposed to end our 
victorious war and is gravely impressed by the fact that its 
provisions appear calculated to force upon us undesirable 
and far-reaching covenants inimical to our free institutions 
under the penalty that failing to accept these we shall con- 
tinue in a state of war while our cobelligerents shall be at 

peace and enjoying its blessings; that it is proposed to make 
3 



4 

us parties to a league of nations, under a plan as to which 
the people of the United States have had neither time to 
examine and consider nor opportunity to express regarding it 
a matured and deliberate judgment, whereas the treaty may 
be easily so drawn as to permit the making of immediate 
peace, leaving the question of the establishment of a league 
of nations for later determination; and that the treaty as 
drawn contains principles, guarantees, and undertakings obliter- 
ative of legitimate race and national aspirations, oppressive of 
weak nations' and peoples, and destructive of human progress 
and liberty; Therefore be it 

1 Resolved, That the Senate of the United States will regard as 

2 fully adequate for our national needs and as completely respon- 

3 sive to the duties and obligations we owe to our cobelligerents 

4 and to humanity, a peace treaty which shall assure to the 

5 United States and its people the attainment of those ends for 

6 which we entered the war, and that it will look with disfavor 

7 upon all treaty provisions going beyond these ends. 

8 2. That since the people of the United States have them- 

9 selves determined and provided in their constitution the only 

10 ways in which the Constitution may be amended, and since 

11 amendment b}' treaty stipulation is not one of the methods 

12 which the people have so prescribed, the treaty-making power 

13 of the United States has no authority to make a treaty which 

14 in effect amends the Constitution of the United States, and the 

15 Senate of the United States can not advise and consent to any 

16 treaty provision which would have such effect, if enforced. 



5 

1 3. That the Senate advises, in accordance with its constitu- 

2 tional right and duty, that the great paramount, if not sole 

3 duty of the peace conference is cjuickly to bring all the bel- 

4 ligetents a full and complete peace; that to this end, the treaty 

5 shall be so drawn as to permit any nation to reserve without 

6 prejudice to itself for future separate and full consideration by 

7 its people the question of any league of nations, that neither 

8 such an article nor the exercise of the rights reserved thereunder, 

9 whether at the time of signature, the time of ratification, or 

10 at any other time, shall affect the substance of the obligations 

11 of Germany and its cobelligerents under the treaty, nor the 

12 validity of signature and ratification on their behalf; and that 

13 any indispensable participation by the United States in matters 

14 covered by the league covenant shall, pending the entry of the 

15 United States into the league, be accomplished through diplo- 

16 matic commissions which shall be created with full power in the 

17 premises. 

18 4. That this resolution indicates and gives notice of the limits 

19 of the present obligations against the United States in which 

20 the Senate of the United States is now prepared to acquiesce 

21 by consenting to the ratification of a treaty embodying peace 

22 conditions that m.ay be found otherwise acceptable to its judg- 

23 nient, and that the adoption by the peace conference of the fore- 

24 going reasonable limitations and positions will facilitate the 

25 early acceptance of the treaty of peace by the Senate of the 
2G United States, will in no wise interfere with the league of nations 
27 as between these countries prepared to ratify the treaty without 



(5 

1 further consideration and will afford such a manifestation of 

2 real respect for the wishes of a great people as can not fail 

3 more firmly to cement the friendship already existing between 

4 ourselves and our cobelligerents. 



[Spiiate, Resolution 86.] 

Mr. SPENCEFt submitted tlio following resolution; which was ordered 
to lie over under the rule: 

1 Resolved, That the Senate approaches the consideration of 

2 the league of nations with entire sympathy and in the earnest 

3 desire to cooperate as fidly as it may in tlius establishing and 

4 preserving the peace of the world. 

5 That in the interest of a frank and full understanding 

6 with the other nations of the world, and particularly with 

7 the signatory nations to the covenant itself, candor and friend- 

8 ship alike require that the danger of future misunderstanding 

9 should as far as possible be eliminated, and to that end the 

10 following declarations should be clearly and definitely made: 

11 First. That the Monroe doctrine is an essential national 

12 policy of the United States, and that the necessity and extent 

13 of its application and enforcement are matters to be deter- 

14 mined alone by the United States as the occasion for interpreta- 

15 tion may from time to time arise and without interference, 

16 direct or indirect, on the part of any other nation. 

17 Second. That internal questions entirely domestic in char- 

18 acter, such as immigration and tariff, notwithstanchng 

19 certain international results that may from time to time natu- 

20 rally be connected therewith, are matters to be determined 

21 entirely by the country in which they arise, and are under no 

7 



8 

1 circumstances questions for settlement under the provisions 

'2 of the league of nations. 

3 Third. That inasmuch as the United States is governed by 

4 a written constitution, the provisions of which are supreme 

5 and controlling in this Republic over every act, legislative, 

6 executive, or judicial, and by such constitution it is expressly 

7 provided that the power either to declare war or to continue 
S war for more than two years is vested exclusively in the Con- 
9 gress of the United States, it is apparent that the United 

10 States can not bind itself in advance to either make war in 

11 the future or to send its Army or Navy into other lands for 

12 purposes- of control, which is an act of war, without the express 

13 authorization of Congress at the time, and, therefore, whether 

14 the United States, as the necessity for such action in the 

15 future may arise, shall by any military or naval force cooper- 

16 ate in maintaining any of the provisions of the league of 

17 nations is a matter which the Congress under the provisions 

18 of the Constitution of the United States is, and must be, 

19 entirely free to determine by what in its judgment is at the 

20 time consistent with the honor and interest and duty of the 

21 American people. 



Reservations by Mr. Hale. 

1 The Senate of the United States of America advises and 

2 consents to the ratification of said treaty with the follow- 

3 ing reservations and understandings as to its interpreta- 

4 tion and effect to be made a part of the instrument of 

5 ratification: 

6 First. That whenever two years' notice of withdrawal 

7 from the league of nations shall have been given, as 

8 provided in article 1 of the covenant, the power giving 

9 the notice shall cease to be a member of the league, or 

10 subject to the obligations of the covenant of the league, 

11 at the time specified in the notice, notwithstanding any 

12 claim, charge, or finding of the nonfulfillment of any inter- 

13 national obligation or of any obligation under said cove- 

14 nant: Provided, however, That such withdrawal shall not 

15 release the power from any debt or liability theretofore 

16 incurred. 

17 wSecond. That questions relating to immigration, or the 

18 imposition of duties on imports, where such questions do 

19 not arise out of any international engagement, are ques- 

20 tions of domestic policy, and these and any other questions 

21 which, according to international law, are solely within the 

22 domestic jurisdiction are not to be submitted for the con- 

23 sideration or action of the league of nations or of any of 
.24 its agencies. 



10 

1 Third. That the meaning of article 21 of the covenant 

2 of the league of nations is that the United States of 

3 America does not relinquish its traditional attitude toward 

4 purely American questions, and is not required by said 

5 covenant to sul)mit its policies regarding questions which 

6 it deems to be purely American questions to the league 

7 of nations or any of its agencies, and that the United 

8 States of America may oppose and prevent any acquisi- 

9 sition by any non-American power by conquest, purchase, 

10 or in any other manner of any territory, possession, or 

11 control in the Western Hemisphere. 

12 Fourth. That the meaning of article 10 of the covenant 

13 of the league of nations is that the members of the league 

14 are not under any obligation to act in pursuance of said 

15 article except as they may decide to act upon the advice 

16 of the council of the league. The United States of Amer- 

17 ica assumes no obligation under said article to undertake 

18 any military expedition or to employ its armed forces on 

19 land or sea unless such action is authorized by the Con- 

20 gress of the United States of America, which has exclusive 

21 authority to declare war or to determine for the United 

22 States of America whether there is any obligation on its 

23 part under said article and the means or action by which 

24 any such obligation shall be fulfilled. 



[Senate Resolution 168.] 

Mr. PiTTMAN submitted the following resolution; which was ordered 
to lie over under the rule : 

1 Resolved, That when the Senate of the United States shall 

2 advise and consent to the ratification of the treaty of peace 

3 with Germany, signed at Versailles on the 28th day of June, 

4 1919, now pending in the Senate, that it be done with and in 

5 consideration of the following understanding as to the present 

6 and future construction and interpretation to be given to the 

7 treaty: 

8 1. That whenever the two years' notice of withdrawal from 

9 the league of nations shall have been given by any member of 

10 the league, as provided in Article I, the Government giving such 

11 notice shall be the sole judge whether all its international obli- 

12 gations and all its obligations under the covenant shall have 

13 been fulfilled at the time of withdrawal. 

14 2. That the suggestions of the council of the league of nations 

15 as to the means of carrying into effect the obligations of Article 

16 X, the execution of which may require the use of military or 

17 naval forces or economical measures, can only be carried out 

18 through the voluntary separate action of each of the respective 

19 Governments, members of the league, and that the failure of 

20 any such Government to adopt the suggestions of the council 

21 of the league, or to provide such military or naval forces or 

11 



12 

1 economical measures, shall not constitute a moral or legal 

2 violation of the treaty. 

3 3. That all domestic and political questions relating to the 

4 internal affairs of a Government which is a member of the 

5 league, including immigration, coastwise traffic, the tariff, and 

6 commerce, are solely within the jurisdiction of such Govern- 

7 ment, and are not by the covenant of the league of nations 

8 submitted in any way either to arbitration or to the considera- 

9 tion of the council or assembly or the league of nations or to 

10 the decision or recommendations of any other power. If a 

11 dispute arises between parties with regard to a question other 

12 than those which are herein specifically exempted as domestic 

13 questions, and it is claimed by one of the parties that such 

14 question is a domestic and political question, relating to its 

15 internal affairs, then the council shall not consider or make 

16 recommendations thereon, except upon the unanimous vote of 

17 the council, other than the representations of the disputants. 

18 4. There shall not be submitted to arbitration or inquiry b}^ 

19 the assembly or the council any question which, in the judg- 

20 ment of the United States, depends upon or involves its long- 

21 established policy, commonly known as the Monroe doctrine, 

22 and it is preserved uneffected by any provision of the said 

23 treatv. 



[Senate Resolution 169. J 

Mr. Owen submitted the following resolution ; which was referred 
to the Committee on Foreign Relations: 

1 Resolved, That the Senate of the United States, in ratifying 

2 the treaty of peace with Germany, has done so with the under- 

3 standing that the meaning and purpose of this instrument is 

4 as follows: 

5 1. That there is nothing in the covenant establishing the 

6 league of nations capable of being interpreted as permitting 

7 the league of nations to interfere with any of the domestic 

8 affairs of the United States or of any other nation, such as 

9 matters relative to immigration, emigration, imports, or exports, 

10 coastwise traffic, or sovereignty within the three-mile limit of 

11 its seacoast. 

12 2. That nothing in the covenant can be construed as requir- 

13 ing the United States to use its military or naval forces except 

14 when the Congress of the United States within its own discre- 

15 tion may authorize it. 

16 3. That if any member nation should see fit to withdraw 

17 from the league would not be precluded from doing so on the 

18 ground that it had not complied with its obligations. 

19 4. That the covenant of the league will not in any degree 

20 impair the Monroe doctrine as heretofore interpreted by the 

21 Government of the United States. 

13 



14 

1 5. That the league of nations is not authorized to interfere 

2 with the internal revolutions of any nation except in respect 

3 to the backward nations under a mandatory, nor to interfere 

4 with the readjustment of boundaries by agreement. 

5 6. It is the opinion of the Senate that the reduction of arma- 

6 nient should proceed as rapidly as the safety of the world 

7 shall permit. 

8 7. It is the opinion of the Senate that the pledge contained 

9 in article 23 (b) that the members of the league "undertake 

10 to secure just treatment of the native inhabitants under their 

11 control" is a moral pledge of the highest international char- 

12 acter made in pursuance of the principles enunciated by the 

13 President of the United States January 8, 1917, and in his 

14 subsequent addresses which were accepted by the allied gov- 

15 ernments on November 5, 1918, in arranging a basis for a 

16 treaty of peace with the Government of Germany. 

17 8; The Senate has ratified the treaty upon the express 

18 understanding that the Japanese Government will fully and 

19 speedily carry out the pledge made to the Chinese Govern- 

20 ment in May, 1915, with regard to the Sliantung Peninsula 

21 and has every confidence of the faithful and early compliance 

22 with this pledge. 



Reservations reported by Mr. Lodge from the C<^mmittee on 
Foreign Relations to be made a part of the resolution of ratification 
of the treaty of peace witli Germany when it is submitted, viz: 

1 1. The United States reserves to itself the unconditional right 

2 to withdraw from the league of nations upon the notice pro- 

3 vided in article 1 of said treaty of peace with Germany. 

4 2. Tlie United States declines to assume, under the provisions 

5 of article 10, or under any other article, any obligation to j^re- 

6 serve the territorial integrity or political independence of any 

7 other country or to interfere in controversies between other 

8 nations, members of the league or not, or to employ the military 

9 or naval forces of the United States in such controversies, or to 

10 adopt economic measures, for the protection of any other country, 

11 whether a member of the league or not, against external aggres- 

12 sion or for the purpose of coercing any other country, or for the 

13 pm-pose of intervention in the internal conflicts or other con- 

14 troversies which may arise in any other country, and no mandate 

15 shall be accepted by the United States under article 22, Part I, 

16 of the treaty of peace with Germany, except by action of the 

17 Congress of the United States. 

18 3. The United States reserves to itself exclusively the right 

19 to decide what questions are within its domestic jurisdiction, 

20 and declares that all domestic and political questions relating 

21 to its affairs, including immigration, coastwise traffic, the. tariff, 

22 commerce, and all other, domestic questions, are solely within 

15 



16 

1 the jurisdiction of the United States and are not under this 

2 treaty submitted in any way either to arbitration or to the 

3 consideration of the council or of the assembly of the league of 

4 nations, or to the decision or recommendation of any other power. 

5 4. The United States declines to submit for arbitration or 

6 inquiry by the assembly or the council of the league of nations. 

7 provided for in said treaty of peace any questions which in the 

8 judgment of the United States depend upon or relate to its long- 

9 established policy, commonly known as the Monroe doctrine; 

10 said doctrine is to be interpreted by the United States alone^ 

11 and is hereby declared to be wholly outside the jurisdiction of 

12 said league of nations and entirely unaffected by any provision 

13 contained in the said treaty of peace with Germany. 



Keservations intended to be proposed by Mr. McCumber to be 
made a part of the resolution of ratification of the treaty of peace 
with Germany, viz: 

1 1. That whenever the two years' notice of withdraw-al from 

2 the league of nations shall have been given by the United 

3 States, as provided in article 1, the United States shall be 

4 the sole judge whether all its international obligations and 

5 all its obligations under this covenant shall have been fulfilled 

6 at the time of withdrawal. 

7 2. That the suggestions of the council of the league of 

8 nations as to the means of carrymg the obligations of article 

9 10 into effect are only advisory, and that any undertaking 

10 under the provisions of article 10, the execution of which 

11 may require the use of Americam military or naval forces or 

12 economic measure, can under the Constitution be carried out 

13 only by the action of the Congress, and that the failure of 

14 the Congress to adopt the suggestions of the council of the 

15 league, or to provide such military or naval forces or economic 

16 measures, shall not constitute a violation of the treaty. 

17 3. The United States reserves to itself the right to decide 

18 what questions are wdthin its domestic jurisdiction and 

19 declares that all domestic and political questions relating to 

20 its internal affairs, including immigration, coastwise traffic, 

21 the tariff, commerce, and all other purely domestic questions 

22 are solely w^ithin the jurisdiction of the United States and are 

23 not by this covenant submitted in any way either to arbitra- 

24 tion or to the consideration of the council or the assembl}^ of 

S. Doc. 139, 66-1 2 17 



18 

1 the league of nations or to the decision or recommendation 

2 of any other power. 

3 4. The United States does not bind itself to submit for 

4 arbitration or inquiry by the assembly or the council any 

5 question which in the judgment of the United States depends 

6 upon or involves its long-established policy commonly known 

7 as the Monroe doctrine, and it is preserved unaffected by any 

8 provision in the said treaty contained. 

9 5. That in advising and consenting to the ratification of 

10 said treaty the United States understands that the German 

11 rights and interests, renounced by Germany in favor of 

12 Japan under the provisions of articles 156, 157, and 158 of 

13 said treaty, are to be returned by Japan to China at the 

14 termination of the present war by the adoption of this treaty 

15 as provided in the exchanged notes between the Japanese 

16 and Chinese Governments of date May 25, 1915. 

17 6. That the United States understands and construes the 

18 words ''dispute between members'' and the words "dispute 

19 betvv^een parties" in article 15 to mean that a dispute with a 

20 self-governing dominion, colony, or dependency represented 

21 in the assembly is a dispute with the dominant or principal 

22 member represented therein and that a dispute with such 

23 dominant or principal member is a dispute with all of its 

24 self-governing dominions, colonies, or dependencies; and that 

25 the exclusion of the parties to the dispute provided in the 

26 last paragraph of said article will cover not only the dominant 

27 or principal member, but also its dominions, colonies, and 

28 dependencies. 



Reservations intended to be proposed by Mr. SxMITH of Georgia 
to the pending treaty of peace with Germany, viz: 

1 BesoJved, That the Senate advises and consents to the ratifi- 

2 cation of the treaty Vvith Germany v/ith the following provisos 

3 to be made a part of such ratification: 

4 First. The United States understands and construes the words 

5 "dispute between members" and the words "dispute between 

6 parties," in fu'ticle 15, to mean that a dispute with a principal 

7 member, self-governing dominion, colon}^, or dependency rep- 

8 resented in the assembly is a dispute with the dominant or prin- 

9 cipal member represented therein, and with each of the other 

10 self-governing dominions, colonies, or dependencies thereof, and 

11 that the exclusion of the parties to the dispute provided in the 

12 last paragraph of said article will cover the dominant or princi- 

13 pal member, its dominions, colonies, and dependencies. 

14 Second. The United States understands that, as the covenant 

15 provides no tribunal to pass judgment upon the subject, when- 

16 ever the two years' notice for withdrawal from the league of 

17 nations shall have been given by a member nation, as provided 
1(S in article 1, the member nation shall be the sole judge whether 

19 all its international obligations and all its obligations under this 

20 covenant have been fulfilled, and notice of withdrawal by the 

21 United States can be given by a concurrent resolution of the 

22 Congress of the United States. 

23 Third. The United States understands that the reference to 

24 the Monroe doctrine in the league covenant means that the 

19 



20 

1 long-established policy of the United States, commonly known 

2 as the Monroe doctrine, is preserved unaflected by the covenant, 

3 and that no question which depends upon or involves this policy 

4 is to be submitted to arbitration or inquiry by the assembly or 

5 the council of the league. 

6 Fourth. The United States understands that, under the league 

7 covenant, no cj^uestion can be raised either in the assembly or 

8 in the council of the league which will give either body the right 

9 to report or to make any recommendation, or to take any action 
10 upon the policy of the United States or any other member na- 
il tion with regard to domestic or political questions relating to 

12 its internal affairs, including immigration, coastwise traffic, the 

13 tariff, commerce, and all other purely domestic questions, but 

14 these questions, in whatever manner they may arise, are solely 

15 within the jurisdiction of each member nation, and are not by 

16 the covenant submitted in an}^ way either to arbitration or to 

17 the consideration of the council or the assembly of the league of 

18 nations, or to the decision or recommendation of any other 

19 power, and, in the case of the United States, they are reserved 

20 for action by the Congress of the United States. 

21 Fifth. The United States understands that the advice which 

22 may be given by the council or the assembly of the league with 

23 regard to the employment of the military or naval forces by a 

24 member nation, or with regard to the use of economic measm'es 

25 for the protection of any other country, whether member of the 

26 league or not, or for the purpose of coercing any other coimtry 

27 or for the purpose of intervention in the internal conflicts or 



21 

1 other controversios which may arise in any other country, is to 

2 be regarded only as advice, and leaves each member nation free 

3 to exercise its own judgment as to whether it is wise or prac- 

4 ticable to act upon that advice, and that the Congress must 

5 determine for the United States its course. 

6 The United States can not assume, under the provisions of 

7 article 10, or any other article, any obligation to preserve the 

8 territorial integrity or political independence of any other coun- 

9 try, or to interfere, under the provisions of article 16, in contro- 

10 versies between other nations, whether members of the league 

11 or not. 

12 The authority for decisions in all matters, referred to in this 

13 reservation, is placed by the Constitution of the United States 

14 upon the Congress, and the failiu-e of the Congress to adopt the 

15 suggestions of the assembly or the council of the league of na- 

16 tions, or to take independent action, shall not constitute a vio- 

17 lation of the treaty, and no mandate shall be accepted by the 

18 United States, as provided in article 22, part 1, except by action 

19 of the Congress of the United States. 

20 Sixth. The United States understands that the representatives 

21 of the other nations upon the reparations commission will inter- 

22 fere with exports from the United States to Germany, or from 

23 Germany to the United States, only when the United States 

24 also approves the interference. 

25 Seventh. The United States understands that no one may 

26 represent the United States in any of the positions created by 

27 the treaty, except when appointed by the President with the 



1 advice and consent of the Senate, unless provision is hereafter 

2 made by the Congress for selections in a different manner, and 

3 the representative of the United States, either in the assembly 

4 or the council, shall have no authority to agree for the United 

5 States to any amendment to, or change in, the covenant of the 

6 league, until the same has been fii'st submitted to and ratified 

7 by the Senate of the United States, as other treaties. 



Reservation intended to be proposed by JMi*. Curtis to the reser- 
vations proposed by the Committee on Foreign Relations, as a part 
of the resohition 6i ratification of the treaty of peace with Ger- 
many, viz: 

1 5. The United States construes subdivision "C" of article 23 

2 to mean that the league shall refuse to recognize agreements 

3 with regard to the traffic in women and children and that the 

4 league shall use every means possible to abolish and do away 

5 with such practice. 

23 



Amendment intended to be proposed by Mr. Sherman to the docu- 
ment (S. Doc. 85) treaty of Peace with Germany, viz: 

1 On page 17, line 10, before the word "agree" insert the foUow- 

2 ing: 

3 "invoke the considerate judgment of mankind and the gracious 

4 favor of Almighty God and." 

25 



Reservations iiitended to be proposed by Mr. Thomas to be made 
a part of the resolution of ratification of the treaty of peace with 
Germany, viz: 

1 1. The United States declines to submit the credentials of its 

2 delegates and their advisers to the general conference to the 

3 determination of that body or to receive or act upon proposals 

4 of any conference from which its delegates and advisers or any 

5 of them have been excluded. And the United States under- 

6 stands and construes the Government delegates provided by 

7 article 389, and the twelve delegates representing governments 

8 upon the governing body of the international labor office and 

9 tlie person of independent standing to be nominated for the 

10 panel provided by article 412 to mean that both employers and 

11 workers are ineligible to selection or appomtment to said posi- 

12 tions or any of them. And the United States declines to submit 

13 the credentials or qualifications of any of its appointees under 

14 Part XIII of the treaty to any authority whatever. 

15 2. The United States understands that the provisions of 

16 article 1, Part I, of the treaty, authorizing any member of the 

17 league to withdraw therefrom^ mean that any such withdrawal 

18 when made is a withdrawal from the international organization 

19 created by Part XIII of the treaty. The United States also 

20 understands that amendments to Part XIII, under the pro- 

21 visions of article 422. shall not bind any member of the league 

22 which signifies its dissent therefrom, but in that case it shall 

23 cease to be a member of the league. 

27 



28 

1 3. The United States reserves to itself exclusively the right to 

2 decide what cjuestions are within its domestic jurisdiction and 

3 that of the States^ respectively, and declares that all domestic 

4 and political questions relating to its affairs, including immigra- 

5 tion, coastwise traffic, agriculture, the tariff, commerce, and all 

6 other domestic subjects are not under Part XIII of this treaty 

7 submitted to the determination of the general conference, the 

8 governing body of the international labor union, or any other 

9 commission of inquiry to be chosen thereunder. 

10 4. The United States reserves the right to decline to recognize 

11 the authority, except that of a member of the league, to file a 

12 complaint with the international labor office that it is not secur- 

13 ing effective observance of any convention which both have 

14 ratified in accordance with the articles of Part XIII. 



Mr. Owen submitted tlio following resolution; which was referred 
to Committee on Foroio;n Relations: 



1 Resolved, That the United States in ratifying the covenant 

2 of the League of Nations does not intend to be understood as 

3 modifying in any degree the obligations entered into by the 

4 United States and the Entente ^Ulies in the agreement of Novem- 

5 ber 5, 1918, upon which as a basis the German Emjjire laid down 

6 its arms. The United States regards that contract to carry out 

7 the principles set forth by the President of the United States 

8 on January 8, 1917, and in subsequent addresses, as a world 

9 agreement, binding on the great Nations which entered into it, 

10 and that the principles there sot forth will be carried out in 

11 due time through the mechanism provided in the covenant, 

12 and that Article 23, Paragraph (b), pledging the members of 

13 the League to undertake to secure just treatment of the native 

14 inhabitants under their control, involves a pledge to carry out 

15 these principles. 

16 The protectorate which Germany recognizes in Great Britain 

17 over Egypt is understood to be merely a means through which 

18 the nominal suzerainty of Turkey over Egypt shall be trans- 

19 ferre;l to the Egyptian people, and shall not be construed as a 

20 recognition by the United States in Great Britain of any sov- 

21 ereign rights over the Eg3^ptain people or as depriving the people 

22 of Egypt of any of their rights of self-government. 

29 



Suggested compromise reservations by Mr. McCumber: 

1 Concerning withdrawal: 

2 That the United States understands, and so construes article ] , 

3 that in case of notice of withdrawal from the league of nations, 

4 as provided in said article, the United States shall be the sole 

5 judge as to Vrhether all its international obligations and all its 

6 obligations under the said covenant have been fulfilled. 

7 Concerning Article 10: 

8 The United States assumes no obligation to preserve the 

9 territorial integrity or political independence of any other 

10 country, or to interfere in controversies between nations, whether 

11 members of the league or not, under the provisions of article 10, 

12 or to employ the military and naval forces of the United States 

13 under any article of the treaty for any purpose, unless in any 

14 particular case the Congress which, under the Constitution, has 

15 the sole power to declare war or authorize the employment of 

16 the military and naval forces of the United States, shall, by act 

17 or joint resolution, so declare. 

18 Concerning domestic questions: 

19 The United ^States reserves to itself exclusively the right to 

20 decide what questions are within its domestic jurisdiction, and 

21 declares that all domestic and political questions relating to its 

22 internal affairs, including immigration, coastwise traffic, the 

23 tariff, commerce, and all other domestic questions, are solely 

24 within the jurisdiction of the United ^States and are not, under 

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32 

1 this treaty, submitted in any way either to arbitration or to the 

2 consideration of the council or the assembly of the league of 

3 nations or to the decision or recommendation of any other power. 

4 Concerning the Monroe doctrine : 

5 The United States does not bind itself to submit for arbitra- 

6 tion or inquiry by the assembly or the council any question 

7 which, in the judgment of the United States, depends upon or 

8 involves its long-established policy commonly known as the 

9 Monroe doctrine. Said doctrine is to be interpreted by the 

10 United States alone and is hereby declared to be wholly outside 

11 the jurisdiction of said league of nations; and it is preserved 

12 unaffected by any provision in said treaty contained. 

13 Concerning Shantung: 

14 The United States refrains from entering into any agreement 

15 on its part in reference to the matters contained in articles 

16 156, 157, and 158, and reserves full liberty of action in respect 

17 to any controversy which may arise in relation thereto. 

18 Concerning votes of dominions (where neither principal 

19 country nor dominion is party to dispute) : 

20 The United States reser\'es the right, upon the submission 

21 of any dispute to the council or the assembly, to object to any 

22 member and its self-governing dominions, dependencies, or 

23 possessions having in the aggregate more than one vote; and 

24 in case such objection is made the United States assumes no 

25 obligation to be bound by any election, finding, or decision in 

26 which such member and its said dominions, dependencies, and 

27 possessions have in the aggregate cast more than one vote. 



33 

1 Concerning votes of dominions (where principarcoun- 

2 try or dominion is party to dispute) : 

3 That the United States understands and construes the words 

4 "dispute between members" and the words "dispute between 

5 parties" in article 15 to mean that a dispute with a self-go vern- 

6 ing domhiion, colony, or dependency represented in the assembly 

7 is a dispute with the dominant or principal member repre- 

8 seiited tliiM'oiu and (hat a (lis])u((' witli sucli dominant or j^rin- 

9 cipal meudxT is a (lis]>iit(' with all of its self-goA'eniiiig dominions, 

10 coloiiios, or dc])(Mi(liMi('ies: and that tlie exclusion of the parties 

11 to the (lis])uto provided in the last ])aragraph of said article 

12 will vovvv not only tlie dominant or ])rincii)a.l member but 

13 also its dominions, colonies, and dej)endencies. 

8. Doc. 139, 66-1 3 



The following is proposed by Mr. Jones of Washington, as an 
additional paragi-aph in the resolution of ratification: 

1 Paragraph — -. The United States hereby gives notice that it 

2 will withdraw from the league of nations at the end of two years 

3 from the date of the exchange of ratifications of this treaty unless 

4 by the end of that period — 

5 (1) The sovereignty of China shall have been fully restored 

6 over and in Shantung. 

7 (2) The relations of Ireland to the British Emphe shall have 

8 been adjusted satisfactorily to the people of Ireland, 

9 (3) The independence of Egypt shall be recognized and that 

10 country set up as a free, independent, and sovereign State. 

11 (4) Each member of the league shall have abolished through 

12 the duly constituted authority the policy of maintaining its 

13 regular military and naval forces in time of peace by conscription. 

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